The most frequently cited historical parallels, Britain and its
19th-century pax Britannica, or 16th-century Spain, the first
country to grasp New World prosperity to dominate the Old World,
do not really fit modern America. Both were locked in rivalry with
other nearly equal European powers: France and (in the British case)
Germany.
Washington readers could do worse than go back to a study of the
first real exerciser of unipolar power, the Roman Empire. The book
to read is Edward Gibbon's classic study, whose first volume was
(by chance) published in 1776, the year of the signing of the American
declaration of independence. Gibbon's advice immediately looks quite
attractive and relevant to today.
He begins with praise for the peaceful character of the Emperor
Augustus and of Roman realism and multilateralism: "Inclined to
peace by his temper and situation, it was easy for him to discover
that Rome, in her present exalted situation, had much less to hope
than to fear from the chance of arms; and that, in the prosecution
of remote wars, the undertaking became, every day, more difficult,
the event more doubtful, the possession more precarious, and less
beneficial."
Previously secure countries can quickly drift away from the political
grasp of the hegemon, as resentments and anxieties about the unipolarity
of the world grow. Gibbon even had words that might help President
George W. Bush understand or deal with Gerhard Schröder's would-be
independent foreign policy. "The forests and morasses of Germany
were filled with a hardy race of barbarians; and though, on the
first attack, they seemed to yield to the weight of Roman power,
they soon, by a single act of despair, regained their independence,
and reminded Augustus of the vicissitude of fortune." This is a
good description of the often counter-productive psychology of the
need to slap the hegemon. But such revolt alone is not enough to
overthrow hegemonic power.
Why did the Roman version of uni- polarity collapse? Gibbon's empire
depended at the height of its success on a sort of multiculturalism,
which Romans put in terms of the admission of local deities to the
quite crowded complex of the Roman imperial pantheon. In the same
way, the US has recently gone out of its way to show how eagerly
it will embrace a non-threatening version of Islamic (or indeed
Hindu or Confucian) values. A too emphatic insistence on any uniquely
Roman virtue or divinity would destroy a precarious notion of cultural
pluralism. But it was exactly that plurality of a social and economic
kind that proved to be a mechanism of disintegration.
Gibbon saw his story of decline and fall in terms of a revolt against
Roman universalism driven by a Christian and egalitarian protest
against the unequal distribution of property. This was an early
version of an anti-globalisation movement, in which inequalities
stemming from the character of imperial power touched off protests.
"Most of the crimes which disturb the internal peace of society
are produced by the restraints which the necessary, but unequal,
laws of property have imposed on the appetites of mankind, by confining
to a few the possession of those objects that are coveted by many."
Maybe Gibbon was also making a contemporary reference of his own,
to the weaknesses of the late-18th-century British empire, with
its global commercial culture, so signally exposed and attacked
by the American Revolution.
This 18th-century historian's picture of empire and its rules breeding
resentment is at odds with a deeply reasoned view, drawn from American
social science, about the way in which the modern world can be made
peaceful. The argument of the September 2002 US national security
strategy initially appears compelling. Because the US can so clearly
outspend and defeat (pre-emptively if necessary) any other power,
all other powers have an interest in cutting back military spending
and threats to their neighbours. This will probably make them wealthier
and, therefore, more democratic and peaceful. The world will in
this manner be stabilised by the benign force of Washington - a
dream very close to that of Augustus.
Which of the arguments is right: the historian's view of long-term
decline and fall, or the social scientist's of permanent peace as
a result of rational calculation by rational leaders?
The answer depends as much on the stability of the country at the
centre as on the behaviour of the rest of the world. The US, unlike
the British empire, is building its rule on a foundation that is
potentially quite unstable. The British empire in its 19th-century
heyday ran enormous current account surpluses (7 per cent of gross
domestic product on the eve of the first world war). For more than
20 years, in the period of its cold war victory and of the conversion
of the world to a new consensus about markets, the US has had quite
large current account deficits. In 2001, the deficit was 4.2 per
cent of GDP.
One way of reading this odd situation - which is popular with many
Americans - is that the rest of the world has bought into US stability.
The deficits are financed by capital inflows, as the non-American
world buys the stock of fast-growing US companies or - when the
stock market looks bad - property. Indeed, there appears to be a
security premium that the rest of the world pays, in that non-American
purchases of US assets show consistently lower returns than US purchases
of foreign assets.
But nobody thinks that this kind of inflow can be sustained indefinitely.
The inflows of foreign capital could be rapidly reversed on some
chance piece of bad news. Such a reversal would involve a collapse
of the US stock market, the property market and the dollar. US consumers
would no longer be able to binge on cheap goods supplied by the
rest of the world. American producers would try to protect their
markets; foreign producers would be thrown out of business and no
longer see any gains to be realised by peaceful integration in a
benign world economy.
The financial reversal would also bring the collapse of the US
security policy and of its calculated strategy of world pacification.
The cost of US defence spending would look much too high and scaling
it down would give a chance to would-be rivals, at least on a regional
basis - China, for example.
The American case would then look more like that of Spain (which
also ran a current account deficit, financed by the outflow of precious
metals from its imperial possessions) than that of 19th-century
Britain. And Gibbon's story of decline would begin.
The writer is professor of history at Princeton University and
author of The End of Globalization